Lake Chad Basin and River Zambesi Basin Synthesis Report
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FOOD SECURITY AND POVERTY ALLEVIATION THROUGH IMPROVED VALUATION AND GOVERNANCE OF RIVER FISHERIES IN AFRICA Policy Analysis: Lake Chad Basin and River Zambesi Basin Synthesis Report February 2008 For further information, contact Dr. Christophe Béné WorldFish Center Africa and West Asia Programme PO Box 1261 Maadi 11728 Cairo - Egypt Tel: + 202 736 4114 Ext. 109 Fax: + 202 736 4112 Email: [email protected] CONTRIBUTORS Synthesis report Arthur E. Neiland (1) Roger Lewins (1) Cameroon paper Emma Belal (2) Baba Malloum Ousman (2) Niger Paper Na Andi Mamane Tahir (3) Nigeria paper Solomon Ovie (4) Aminu Raji (4) Malawi paper Friday Njaya (5) Steve Donda (6) (1) IDDRA , Portsmouth Technopole, Kingston Crescent, Portsmouth, Hants PO2 8FA, United Kingdom. (http://www.iddra.org) Tel: +44 2392 658232, Fax: +44 2392 658201, E-mail: [email protected] (2) MINEPIA, Yaounde, Cameroon Tel: +237 231 60 49; Fax: +237 231 30 48, e-mail: [email protected] (3) Direction des Peche, Naimey, Niger Tel: +227 929540 / 890321, e-mail: [email protected] (4) National Institute for Freshwater Fisheries Research (NIFFR), New Bussa, Niger State, Nigeria Tel: +234 805 740 2662; e-mail: [email protected] (5) Fisheries Department, P.O. Box 47, Mangochi, Malawi, Email: [email protected] (6) Fisheries Department, P.O. Box 593, Lilongwe, Malawi, Email: [email protected] ii SUMMARY This report focuses on the policy process for natural resource management, and specifically fisheries management, in the countries of the Lake Chad Basin (LCB) and the Zambesi River Basin (ZRB) in Africa. It represents a contribution to the BMZ-funded project ‘Food Security and Poverty Alleviation through Improved Valuation and Governance of River Fisheries in Africa’ (2006-08). There are seven main sections as follows: First, the Introduction highlights the importance of effective policy and policy-making for sustainable development. The current report represents a synthesis of the policy research which was undertaken in the initial phase of the project. It represents one component of this project (the other major components included governance analysis and valuation assessments). The overall objective of the work was to establish a better understanding of the national policy processes in the countries of the two hydrological basins (LCB and ZRB), with particular reference to fisheries. The main thrust of the policy research would be to review the current national fisheries policy processes and the identification of options for change and improvements. Second, the Study Approach aimed to establish a better understanding of the policy process in the LCB and ZRB countries by undertaking a set of national studies. Using both primary and secondary data, the studies attempted to understand the link between sector characteristics and policy, to characterise the policy process (using co-management / decentralisation as a case-study) and to analyse this with reference to five main areas: governance context, policy narratives, actor relations, policy spaces and options, and policy coherence. To complement the empirical analysis of the policy process at national level, three other studies were also undertaken – a review of issues relating to the policy process in a range of natural resource sectors – forestry, wildlife, water, rangeland and fisheries, an overview of the general development context in each basin, and a review of the relationship between national poverty reduction strategies and natural resources and fisheries. Third, under Policy Analysis and Natural Resources in Africa: Conceptual and Empirical Perspectives the findings of the first review study (above) are presented. The studies from the different sectors (forestry, wildlife, water, rangeland, fisheries) highlighted a series of key findings. Policy formation in recent years has been the result of pressure (and narrative development) from a range of different actors (international, national, local), often working in combination. Policy approaches were modified over long periods of time in an on-going process, which often lacked transparency. Policy performance in NR sectors is often weak and the reasons have roots in the past (colonial legacy). Designing and implementing new policy, coherent with other policies and bringing about institutional change takes time and political commitment. Policy related to decentralisation infers new roles for government and non-government stakeholders, and this requires capacity-building. Information and feedback is essential to create the right focus and to establish a dynamic and responsive process. Overall, the case-studies included in this section revealed the non-linear character of the policy process, especially the ‘messy’ character of policy formation and the unexpected outcomes of implementation (or partial implementation). They also highlight the opportunities and problems relating to policy change which present themselves, and the importance of understanding and developing appropriate institutions relevant to policy objectives. Fourth, in this section The Lake Chad and Zambesi Basins – Development Context Reviewed, the general characteristics of the national and regional settings were reviewed. All of the riparian States are relatively youthful (about 50 years old) and despite possessing a significant portfolio of natural resources, national development performance has been weak iii (resulting in small undiversified economies, high levels of debt and a significant level of poverty). To a large extent this can be explained by policy inadequacies and government mis- management. However, other factors are also important including – weak governance, political upheavals and war, highly variable climatic conditions, remoteness from international markets and limited trade, and high HIV incidence rates. Fifth, the section Understanding the Policy Process (Decentralisation of Fisheries Management) presents the results of the four national studies from Cameroon, Niger, Nigeria and Malawi. These studies reveal much about the history, objectives and performance of fisheries policy in each country. Although there is no doubt that the policy process (and the underlying politics) is difficult to understand in many situations, it is possible to identify some policy ‘spaces’ and places where ‘win-win’ outcomes might be achieved with reference to decentralised NRM. Of the four countries, only Malawi has a national policy on fisheries co- management. Niger and Cameroon have a general policy on decentralisation, but fisheries co- management has operated only though donor-funded projects. Nigeria does not have a formal policy on decentralisation, but there are examples of donor-funded fisheries co-management projects. In Cameroon, Niger and Malawi, it is intended that positive changes in fisheries management will occur as new roles and responsibilities are established for regional and local government. These policies are associated with the new national PRSPs and the international narratives which link inclusive local government with pro-poor changes. Apart from Malawi, there are no special arrangements for fisheries, and it is assumed that the decentralisation process will have a positive impact on all sectors in the long-run. Overall, the decentralisation approach and its relationship to fisheries is a new one, and it faces certain constraints to implementation and opportunities (policy spaces) to address them over time. For example, in Malawi, the different sectors, including fisheries, are decentralising slowly and at different rates – this could be addressed by ensuring that District Development Plans also include NRM; in Cameroon, there are concerns that new arrangements for fisheries management are not taking the views of all stakeholders into account, especially the poor – there is an opportunity to work with new civil society organisations within the context of the regional planning process to address this issue; in Niger, there has been some uncertainty as to the role of existing (traditional) authorities within new decentralised government arrangements – CSO have been successful in negotiating new arrangements and partnerships and could be further supported in this role in the future; and in Nigeria, the fact that senior government officials (Federal Department of Fisheries) have acknowledged that fisheries policy-making still overtly centralised within their administrations – there is an opportunity to work through new national programmes (e.g. NEEDS programme) to change the governance arrangements to address these perceived limitations to policy formation and implementation. Sixth, the penultimate section The National Poverty Reduction Strategies, Policy Coherence and the Projected Role of Natural Resources and Fisheries presents the results of a set of national reviews. The PRSPs provide a broad overview of the national economy in each country and together are intended to provide a basis for international comparison in terms of development challenges, performance and strategies. For the countries of the LCB and the ZRB, they focus on agriculture, industry and trade, and the potential for these sectors to contribute to economic growth and development. The PRSPs do link poverty with environmental degradation and economic activities in the rural sector, but they do not consider the major characteristics of the production systems and their links with rural livelihoods. The Cameroon PRSP is the only paper of the four (Cameroon, Niger, Nigeria and Malawi) to acknowledge the close link